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2019 Sable Island National Park Reserve of Canada DRAFT Management Plan
ii © Her Majesty the Queen in Right of Canada, represented by the Chief Executive Officer of Parks Canada, 2019. SABLE ISLAND NATIONAL PARK RESERVE OF CANADA MANAGEMENT PLAN, 2019. Paper: R64-550/2019 978-0-660-30457-1 PDF: R64-550/2019E-PDF 978-0-660-30455-7 Cette publication est aussi disponible en français. For more information about the management plan or about SABLE ISLAND NATIONAL PARK RESERVE: Sable Island National Park Reserve 1869 Upper Water Street, Suite AH-201 Halifax, Nova Scotia B3J 1S9 Tel: 902-426-1993 Fax: 902-426-1775 Email: pc.sable.pc@canada.ca www.pc.gc.ca/sable
Sable Island National Park Reserve iii
Draft Management Plan
Recommendations
Recommended by:
________________________________
Michael Nadler
Acting Chief Executive Officer
Parks Canada
________________________________
Trevor Swerdfager
Senior Vice-President, Operations
Parks Canada
________________________________
Julie Tompa
Field Unit Superintendent
Mainland Nova Scotia Field Unit
Parks Canada
iv
Executive Summary
Sable Island National Park Reserve was established as Canada’s 43rd national park in 2013 to protect
31km2 of land within the Atlantic Coast Uplands Natural Region of the national park system. Located
290 kilometers southeast of Halifax, Nova Scotia, at the edge of the Continental Shelf, Sable Island is
one of Canada’s furthest offshore islands. A thin crescent of shifting sand, the island’s shape and size are
constantly changing due to the action of wind and waves.
In this first management plan, a vision is set for the future of Sable Island National Park Reserve.
Paramount to this vision is furthering our understanding of the park’s natural and cultural heritage, so
that we can better protect and present it for future generations. Through its vision, as well as its
supporting strategies and objectives, the plan serves as the main guide for all aspects of park
management, and is an important accountability document for Canadians as to how the park will be
managed.
Parks Canada did not develop this guide alone; participation by Canadians, including the Mi’kmaq of
Nova Scotia, stakeholders, and youth, was instrumental in shaping the management plan’s direction.
Taking into consideration the extensive feedback that was received through consultation, experience
gained over five years of park management, and ongoing conversations with Sable Island’s vast
community of knowledge holders, three key strategies have been identified to guide the management of
the park for the next ten years and to support the achievement of its vision.
Key Strategy one focuses on building our understanding of this unique site, to better inform the
management of its natural and cultural heritage. Key Strategy two focuses on the facilitation of
connections and captivating experiences that will ultimately inspire Canadians to support the
conservation of Sable Island National Park Reserve. Key Strategy three focuses on increasing the
operational efficiencies, reducing greenhouse gas emissions, and removal of unusable infrastructure,
while enhancing sustainability into the future.
NB: This plan was produced within the context of
ongoing consultations with the Mi’kmaq of Nova
Scotia in an environment of rights reconciliation and
reflects the feedback received.
Sable Island National Park Reserve v
Draft Management Plan
Table of Contents
Recommendations ..................................................................... iii
Executive Summary .................................................................. iiv
1.0 Introduction.......................................................................... 1
2.0 Significance of Sable Island National Park Reserve ............... 3
3.0 Planning Context .................................................................. 3
4.0 Development of this Management Plan ................................ 5
5.0 Vision ................................................................................... 5
6.0 Key Strategies ...................................................................... 6
7.0 Zoning ............................................................................... 10
8.0 Summary of Strategic Environmental Assessment .............. 17
Maps
Map 1: Regional Setting ............................................................. 2
Map 2: Zoning: West Light Sector ............................................ 13
Map 3: Zoning: Central Sector ................................................. 14
Map 4: Zoning: Bald Dune Sector ............................................ 15
Map 5: Zoning: East Light Sector ............................................. 16vi
Sable Island National Park Reserve 1
Draft Management Plan
1.0 Introduction
Parks Canada manages one of the finest and most extensive systems of protected natural and historic
places in the world. The Agency’s mandate is to protect and present these places for the benefit and
enjoyment of current and future generations. Future-oriented, strategic management of each national
park, national marine conservation area, heritage canal and those national historic sites administered by
Parks Canada supports the Agency’s vision:
Canada’s treasured natural and historic places will be a living legacy, connecting hearts and minds to
a stronger, deeper understanding of the very essence of Canada.
The Canada National Parks Act and the Parks Canada Agency Act require Parks Canada to prepare a
management plan for each national park. The Sable Island National Park Reserve of Canada
Management Plan, once approved by the Minister responsible for Parks Canada and tabled in
Parliament, ensures Parks Canada’s accountability to Canadians, outlining how park management will
achieve measurable results in support of the Agency’s mandate.
Canadians, including the Mi’kmaq of Nova Scotia, partners, and stakeholders, were involved in the
preparation of the management plan, helping to shape the future direction of the national park. Special
effort was also made to engage youth – the next generation of park stewards – throughout its
development.
The plan sets clear, strategic direction for the management and operation of Sable Island National Park
Reserve by articulating a vision, key strategies and objectives. Parks Canada will report annually on
progress toward achieving the plan objectives and will review the plan every ten years or sooner if
required.
This plan is not an end in and of itself. Parks Canada will maintain an open dialogue on the
implementation of the management plan, to ensure that it remains relevant and meaningful. The plan
will serve as the focus for ongoing engagement on the management of Sable Island National Park
Reserve in years to come.2 Map 1: Regional Setting
Sable Island National Park Reserve 3
Draft Management Plan
2.0 Significance of Sable Island National Park Reserve
Sable Island National Park Reserve was established in 2013 as Canada’s 43rd national park. It protects
and presents a 31 km2 crescent of land within the Atlantic Coast Uplands Natural Region of the national
park system. Sable Island was also designated a Migratory Bird Sanctuary in 1977, in recognition of the
abundance and diversity of breeding migratory birds that it protects.
Sable Island is one of Canada’s furthest offshore islands, located in the Atlantic Ocean. This crescent
shaped island of dynamic rolling sand dunes is home to a wild horse population, the world’s largest
breeding colony of grey seals, and species that are found here and nowhere else on earth. The Island is a
testament to adaptation and survival, a place to witness change and marvel at survival in an unlikely
environment.
The majesty and mysteries of Sable Island have intrigued for generations, researchers and artists alike
striving to understand a place that defies understanding. Its unique location offers an opportunity to
comprehend our world and our impacts on its farthest reaches. The forces of nature dominate all life
here, past and present.
Prior to park establishment, Sable Island had been stewarded by various government departments for
over 200 years. Documented knowledge and use of Sable Island by mariners dates back to the early 16th
century, for whom the island posed a major navigational hazard - with more than 300 recorded
shipwrecks, the island became infamously known as ‘The Graveyard of the Atlantic’. In 1801 the Nova
Scotia government established the first life-saving station on Sable Island in an effort to reduce the
suffering and loss of life and cargo resulting from these frequent shipwrecks. Since 1801 there has been
continuous human habitation on Sable Island.
Although there currently exists no evidence of human use prior to the 16th century, Sable Island may
have been visited by earlier seafaring people, including the Mi’kmaq, given the available watercraft
technology of the time, as well as the island’s larger size and proximity to the mainland during the last
glacial period.
Significant geomorphological change has - and continues to - alter the size and shape of Sable Island.
The Island is approximately 42 kilometers long and 1.3 kilometers across at its widest point, though its
exact dimensions change continually due to the intense action of wind, waves, and storms. The park
boundary extends to the low water mark of the Island. Dynamic by nature, environmental change is a
defining characteristic of the Island and is expected to be further accelerated by climate change.
In this first management plan, understanding the risks and accelerated rates of environmental change
plays a central role in planning and managing all aspects of Sable Island National Park Reserve, from
monitoring its ecological integrity to improving the sustainability of its infrastructure. In general, the
first ten years of park management will be characterized by a commitment to question, explore and
understand how best to protect and present this national treasure, including its rich natural and cultural
heritage.
3.0 Planning Context
Indigenous peoples: The national park reserve designation reflects outstanding asserted claims of the
Mi’kmaq of Nova Scotia, which are currently being negotiated through the ‘Made in Nova Scotia’
process. While formal negotiations are underway, Parks Canada and the Mi’kmaq of Nova Scotia have
agreed to work together collaboratively throughout Sable Island National Park Reserve’s management
planning program.
Human heritage and legacy of use: Sable Island has a rich heritage of human use and occupation. It
has been home to many families and supported various activities, from lifesaving stations first
established in 1801 to rescue shipwreck survivors, the subsistence farming that sustained them, to trans-4 Atlantic communications and long-term climatic monitoring services. Evidence of Sable Island’s human history remains present in the form of its famed horses, heritage resources, old buildings, paths, and debris. A significant portfolio of assets and related environmental liabilities were present at the time of park establishment; reducing the physical infrastructure no longer required as well as greenhouse gas emissions will be a significant focus throughout the lifespan of this management plan. A base of operations and research in the North Atlantic: Sable Island continues to function as a base for government and non-government operations in the North Atlantic. Parks Canada works collaboratively with Environment and Climate Change Canada, Fisheries and Oceans Canada, NAV CANADA, the Canadian Armed Forces, and the Province of Nova Scotia to administer their interests, activities and programs on the island. Long-term research and monitoring activities, including climatological monitoring, magnetic observations, and a variety of other studies, continue to be administered at Sable Island National Park Reserve. Off-shore petroleum related activities: Sable Island National Park Reserve’s legislative framework prohibits exploratory and development drilling for petroleum on or within one nautical mile of Sable Island. Continued access to the island for emergency response capacity for offshore activities, and low impact seismic, geological or geophysical programs can be permitted. The Canada-Nova Scotia Offshore Petroleum Board (CNSOPB) regulates offshore activities and has a responsibility to consult with Parks Canada in advance of resource exploration activities. Parks Canada will continue to work with the CNSOPB to ensure that the protection of Sable Island National Park Reserve is taken into full consideration in their regulation of exploration and development activities in the offshore. Visitation: Sable Island has hosted visitors for hundreds of years. Prior to its establishment as a national park, visitation was managed by the Canadian Coast Guard, during which time the island accommodated 50-200 visitors annually. Interest in visiting Sable Island National Park Reserve has grown since that time; there were approximately 450 visitors to Sable Island in 2017 and in 2018. The majority of visitors (~75%) arrive by expedition vessels, with the remainder arriving by chartered aircraft and private vessels. Feedback from public engagement at the time of park establishment indicated support for well-managed visitor experience opportunities on Sable Island, and this interest was confirmed through consultation on the management plan. Island access: Accessing Sable Island National Park Reserve is inherently challenging due to its remote offshore location and unpredictable environmental conditions (e.g. fog, wind, flooded landing conditions). The current access model to support park operations relies on fixed wing aircraft landing on the hard-packed sand of the island’s south beach, or vessel support to move bulk cargo; both means are subject to weather and beach conditions, which impacts the ability to reliably schedule operational activities as well as programming related to visitor experience, research, and asset management. There are two helicopter landing pads, one of which is functional and currently supports a limited number of activities from September to April each year. Key issues identified in State of the Park assessment report: A State of the Park assessment of Parks Canada heritage places aims to assess established indicators in areas such as ecological integrity and cultural heritage, among others, and must be conducted every ten years for places requiring a management plan. As a newly established national park, there exists insufficient data to complete the ratings for many of the State of the Park assessment indicators. The data collected for Sable Island National Park Reserve’s first State of the Park assessment will serve as a baseline for future reporting. Many of the key issues identified through this assessment focus on knowledge gaps that impact management of the site. Areas in which to increase understanding include: ecological integrity, cultural heritage and cultural resource inventories and condition ratings, the risks and rates of environmental change (including geomorphological and climate change).
Sable Island National Park Reserve 5
Draft Management Plan
4.0 Development of this Management Plan
In order to facilitate meaningful opportunities for the public to contribute to Sable Island National Park
Reserve’s management plan, the Let’s Talk Sable Island! consultation approach was developed to
promote participation by all Canadians, locally and nationally, using a variety of in-person and online
methods. Consultation with the Mi’kmaq of Nova Scotia is ongoing, pursuant to the Terms of Reference
for a Mi’kmaq-Nova Scotia-Canada Consultation Process.
Phase one consultation (October 26, 2018 – December 09, 2018) focused on refining elements of the
vision and exploring opportunities and challenges related to park management, prior to the development
of a draft management plan. Four principal topics were explored, including: refining the vision for Sable
Island National Park Reserve; understanding ecological health; guiding sustainable visitation; and
sharing Sable Island’s natural and cultural history.
A variety of approaches were developed to collect feedback from stakeholders, Canadians locally and
nationally, and youth. A stakeholder workshop was held with over 35 participants representing a wide
range of sectors and communities. An on-line engagement platform – www.letstalksableisland.ca - was
developed to facilitate the collection of feedback through a diversity of tools. Group Kits were developed
to facilitate group discussion and enabled a coordinated response from groups and organizations.
Recognizing both the need and challenge of engaging youth (aged 18–24), the next generation of park
stewards, special consideration has been given to increase their participation in public consultation. A
‘Youth Advisory Panel’ was established to engage youth in the development of consultation content, and
to better understand their needs and expectations.
The many thoughtful responses received during the Let’s Talk Sable Island! consultation process are a
testament to the strong connection Canadians feel for this special place. Parks Canada received
approximately 2,096 responses to our request for input.
This draft management plan was developed based on the input received during consultation, ongoing
discussion with Sable Island’s vast community of knowledge holders, input from Parks Canada subject
matter experts and experience gained over five years of park management.
Phase two consultation (currently in progress) provides the public, stakeholders with an opportunity to
review and comment on the draft management plan.
5.0 Vision
The vision presented below expresses the future desired state of Sable Island National Park Reserve in 15
– 20 years. The key elements arose through consultation with Canadians, including the Mi’kmaq of Nova
Scotia, partners and stakeholders at the time of park establishment (2010), and were refined through
further consultation and engagement during the development of this park management plan.
Far out in the North Atlantic, perched on the edge of the continental shelf, sits a wild and
windswept island of sand, its iconic crescent shape seemingly emerging out of nowhere amidst
this great expanse of sea. Isolated and remote, this is one of Canada’s furthest offshore islands.
The forces of nature dominate all life here, past and present. This is a place to witness change
and marvel at the resiliency of life.
Sable Island National Park Reserve was established to protect this place, including its unique
biodiversity, its storied human history and its wild spirit, and ensures that Sable Island
continues to be appreciated and enjoyed by Canadians. Its protection, above all else, is
entrusted to Parks Canada, and Parks Canada in turn relies upon the experience and expertise
that exist within a diverse community of knowledge holders.6
It is through this community that Sable Island is understood, protected and appreciated.
Building on its legacy as a place for government, non-government, academic and artistic
pursuits, the park contributes to the advancement of science and conservation issues of local
and global significance, and continues to inspire new perspectives, creations, and connections
that have yet to be revealed.
The natural and cultural heritage of the Island has been shaped by people, as much as by the
dynamic natural forces that govern all life here. People continue to have a place in the park.
Here, carefully-managed visitation leaves no trace and supports the protection of the natural
and cultural heritage for which the island is valued. It is also a place that is explored from afar.
Through innovative use of technology and the help of partners and stakeholders, Sable Island
National Park Reserve is accessible from our homes and communities, for all of those who
share a curiosity and passion for its fragile yet resilient shores.
6.0 Key Strategies
Three key strategies frame the management direction for Sable Island National Park Reserve for the next
10 years. The strategies and corresponding objectives and targets focus on achieving the vision for the
park through an integrated approach to park management. Targets have been prioritized with specific
dates where feasible. Where no dates have been referenced, the target will be achieved within the period
of the plan based on opportunities, annual priorities and capacity of Parks Canada. Annual
implementation updates will be provided to the Mi’kmaq of Nova Scotia, partners, stakeholders, and the
general public.
Key Strategy 1: Protection in the context of past and future change
Since Sable Island was established as a national park reserve in 2013, significant progress has been made
to establish an ecological monitoring program with established measures which will serve a baseline to
monitor condition into the future. The research community has helped to shape this program and
contributes a significant base of knowledge regarding various aspects, including the interface and
influence of the broader marine environment. There is still much to learn given the dynamic nature and
the complexities of a remote offshore island.
Change is a defining feature of Sable Island’s existence. Its size and shape have dramatically shifted over
time, as have its biodiversity, availability of fresh surface water, and human use. Climate change is
anticipated to further accelerate rates of change through increasing the frequency and intensity of
storms and sea level rise. Protecting Sable Island National Park Reserve’s highly valued natural and
cultural heritage requires an understanding of how the island has changed - and continues to change -
through time. Knowing what resources to protect at Sable Island National Park Reserve and how to
protect them in the context of its ever-shifting sands and dynamic environment is paramount to
achieving this strategy, as is the support and expertise of partners and stakeholders.
Objective 1.1
An understanding of rates of environmental change, and their associated risks at Sable Island National
Park Reserve is developed with partners and stakeholders and is applied to all aspects of park
management and operations.
Targets
• Within seven years, a solid understanding is developed of both the past and predicted future
rates of change of the island’s shape and size (geomorphology),
• Within seven years, risks of climate change to ecosystems and infrastructure are understood;
• Within seven years, updated vulnerability and risk assessments for biodiversity and island
infrastructure are completed, and appropriate mitigations are developed and implemented
where possible within the lifespan of this plan;Sable Island National Park Reserve 7
Draft Management Plan
• Within five years of plan implementation, surface and subsurface water regimes are modelled,
enabling risks to the island’s freshwater resources to be understood; and
• Parks Canada is actively involved in the impact assessment processes associated with any
proposed oil and gas activities in the vicinity of the park, ensuring that the protection of Sable
Island National Park Reserve is taken into consideration.
Objective 1.2
Increased knowledge of Sable Island National Park Reserve’s natural and cultural resources informs
evidence based decision making in support of legal and policy accountabilities.
Targets
• All ecological integrity monitoring measures provide reliable status and trend data on ecological
health of primary indicators for the next State of Park assessment report;
• Current and recommended recovery actions are implemented for species at risk identified in the
Species at Risk Site Analysis Report prepared for Sable Island National Park Reserve;
• A recovery strategy and action plan for the Sable Island sweat bee are completed and
implemented to ensure protection of the species and its critical habitat;
• Rare and endemic insects have been assessed, their status as Species at Risk on Sable Island has
been determined, and any Species at Risk recovery planning requirements are met;
• Sable Island’s naturalized horse population continues to be protected as wildlife and research
focusing on them has increased knowledge about their ecological role on Sable Island;
• Within five years of plan implementation, an inventory of potential archaeological sites will be
completed, the condition of all known artefacts (archaeological objects) and archaeological sites
has been assessed, and protocols for the documentation of newly discovered artefacts and sites
are followed by staff, researchers, tour operators, partners and visitors by 2021;
• At least ten oral history interviews have been conducted and the information gathered is used to
increase the understanding of the cultural resources on the island; and
• Within five years of plan implementation, a shared understanding of heritage values is
developed through engagement of partners and stakeholders.
Objective 1.3
Complex resource management decisions are understood and supported by Canadians; stewardship
opportunities facilitate a deeper level of understanding and contribute to resource monitoring programs.
Targets
• Through meaningful engagement with the Mi’kmaq of Nova Scotia on topics including the
monitoring of natural and cultural resources, the development of research priorities and
protocols, opportunities for the engagement of Mi’kmaw youth, and other areas are identified;
• Knowledge gained through research and monitoring activities relating to natural and cultural
heritage is regularly shared with target audiences, through on-site activities as well as through
outreach education programming that is available off-site and online; and
• Within five years of plan implementation, meaningful citizen science or voluntourism
opportunities have been explored for target audiences to support research and monitoring
programs.
Key Strategy 2: Inspiring connections that build support for conservation
A sense of connection to Sable Island exists in the hearts and minds of many Canadians and people from
around the globe through art, science, literature and lore. This legacy will continue at Sable Island
National Park Reserve through carefully managed opportunities for visitors, artists, and researchers to
support its conservation: when people experience Sable Island, they appreciate, love, and care for it,
becoming ambassadors for its stewardship. First-hand experiences can also inspire creative expressions
and scientific intrigue that, when shared with others, can multiply and create new connections. By
working with partners, researchers, visitors and collaborators, this strategy seeks to facilitate and8 enhance Canadians’ sense of connection to the park, through experiences that are available to diverse audiences - including youth - onsite, offsite and online. Visitation to Sable Island National Park Reserve is currently limited to day trip experiences, with the majority of visitors arriving by expedition ship. While visitor feedback indicates high levels of satisfaction, there are opportunities to work with partners to further enhance and enrich day trip experiences, and to foster deeper understanding and lasting connection with the Island. This will be the focus over the next five years, along with expanding outreach opportunities to share diverse stories about Sable Island. Objective 2.1 Sable Island National Park Reserve will seek the expertise of partners and stakeholders to develop carefully managed opportunities for people to visit and experience the park in ways which align with the park’s vision. Targets • Within one year, a Visitor Experience Strategy is developed, identifying visitor experience opportunities aligned with target markets; • Within one year, a Code of Ethics for responsible visitation, developed with input from partners and stakeholder and based on the Best Management Practice for Visitor Use* is implemented; • Opportunities for day experiences that celebrate and share Sable Island National Park Reserve’s natural and cultural heritage have been developed for target markets; • Opportunities for multi-day experiences (with limited accommodations on the Island or on a boat) have been explored in collaboration with partners; • Within three years, all visits are facilitated by a Parks Canada employee or guide who is trained and accredited through a recognized program and/or approved by Parks Canada; and • Opportunities for visitation by the Mi’kmaq of Nova Scotia, by youth, and others who may not otherwise have access to Sable Island are facilitated through partnerships and volunteerism. * The Best Management Practice for Visitor Use defines the mitigation measures (e.g. protocols to protect the ecosystems against transportation of pathogens, seeds, insects to the Island; management of human-wildlife interaction; protection of vegetation, ponds, cultural resources; group size; guiding requirements, etc.) that will be used to minimize potential negative impact to the natural and cultural resources (by, for example, stipulating conditions in business licences for expedition operators, and providing important information for visitors prior to and upon arrival to the Island). Objective 2.2 All island users, including employees, visitors, researchers, contractors and tour operators, understand and comply with visitor use best management practices, supporting low impact, safe, and positive experiences. Targets • The Best Management Practice for Visitor Use is developed and adopted to guide all visitation to the park to ensure protection of natural and cultural resources; • Every person going to Sable Island National Park Reserve receives a mandatory pre-visit orientation on park regulations and visitor use best management practices to ensure protection of ecological integrity, cultural resources, and visitor safety; • Collaboration with tour and expedition cruise ship operators promotes understanding and awareness of Sable Island National Park Reserve messages and visitor use best practices; • Impacts of visitor and researcher activities are monitored, and ecological impacts detected have led to modifications in programming and permitted use of the Island; and • Business licenses are approved only for tour and expedition ship operators that comply with operational requirements of the business license, including visitor use best management practices, and revenue collection.
Sable Island National Park Reserve 9
Draft Management Plan
Objective 2.3
Sable Island National Park Reserve will cultivate a sense of connection and grow its community of
ambassadors, through regular and ongoing communication and a commitment to excellence and
innovation in sharing the park’s natural and cultural heritage.
Targets
• Research findings, fascinating stories, experiences, and operational updates are shared with targeted
audiences through various channels, such as the national open data portal, the Sable Island National
Park Reserve website and social media platforms;
• Innovative and engaging multimedia productions that promote understanding and support for Sable
Island National Park Reserve’s programs across broad audiences are created through collaborations
with Parks Canada; and
• Opportunities are facilitated for artists and researchers whose work supports park objectives to
present and share their work, through exhibits, conferences, social media, and other outreach
education opportunities.
Objective 2.4
Strategic partnerships are assessed and implemented that broadly support a conservation ethic amongst
key audiences, and that increase the reach and relevancy of Sable Island’s natural and cultural heritage.
Targets
• Off-island experiential opportunities are facilitated through innovative approaches and
technology;
• Targeted initiatives that engage youth and build awareness about Sable Island National Park
Reserve in the next generation of park stewards are identified; and
• Partnerships that support research and art are generating new perspectives, ideas, and
connections that will bring Sable Island National Park Reserve to new audiences.
Key Strategy 3: Sustainability, innovation, and efficient operations
Sable Island’s off-shore location and harsh weather conditions necessitate a safe base of operations for
park staff and other island users. Operating in a remote environment is challenging and costly, and there
are opportunities to evaluate needs, infrastructure, energy requirements and waste management to
ensure sustainability into the future. This strategy aims to demonstrate Sable Island National Park
Reserve’s commitment to innovation and ingenuity in its use of green technology to ensure an efficient
operation in a remote environment. A more sustainable and green operation will support safe, positive
experiences for park users including partners, researchers, artists, and visitors. Through reduced
greenhouse gas emissions, removal of unused infrastructure and restoration of the land, this strategy
will help to support Parks Canada’s commitment to conservation and improvement of ecological
integrity.
Objective 3.1
Increase efficiency and functionality of operational infrastructure for all park users, while reducing the
overall fossil fuel and infrastructure footprint of Sable Island National Park Reserve’s operations.
Targets
• Within three years of management plan implementation, an infrastructure plan is designed to
meet the needs of all Sable Island National Park Reserve users, is responsive to the island’s
unique and harsh environment;
• Within five years of plan implementation, a 50% reduction in fossil fuels has been achieved;
• Surplus assets are being decommissioned and all serviceable infrastructure is being rationalized
to reduce the footprint and optimize operations;10
• Greater efficiency has been achieved through infrastructure planning and consolidation of
operational functions resulting in fewer redundancies and less waste, with demonstrable
progress within three years of plan implementation;
• Opportunities to reduce waste that travels to and from Sable Island National Park Reserve are
explored and implemented; and
• Within three years of plan implementation, a standardized fee schedule has been implemented
at Sable Island National Park Reserve to support improved sustainability of island operations.
7.0 Zoning
Parks Canada’s national park zoning system is an integrated approach to the classification of land and
water areas in a national park and designates where particular activities can occur on land or water,
based on the ability to support those uses. The zoning system has five categories:
• Zone I - Special Preservation;
• Zone II - Wilderness;
• Zone III – Natural Environment;
• Zone IV - Outdoor Recreation; and
• Zone V - Park Services.
This management plan establishes the first zoning plan for Sable Island National Park Reserve,
including Zone I, II, III and IV areas. There are no Zone V areas proposed as this designation is not
applicable in the Sable Island National Park Reserve context. The boundaries of the zones are based on
the most current geospatial data about Sable Island’s natural and cultural resources that are available.
The island’s geomorphology is constantly changing, therefore the geospatial locations presented in maps
2-5 are subject to change.
Zone I – Special Preservation
This zone describes areas within a national park that require special preservation because they contain
unique, threatened, or endangered natural or cultural features. Preservation is the key consideration.
Motorized access is not permitted. Where an area is too fragile to allow public access, every effort will be
made to provide park visitors with off-site programs and exhibits interpreting the area’s special
characteristics.
The following areas are identified as Zone I and together account for 0.7 % of the park reserve:
• Roseate Tern Critical Habitat at East Light:
In order to protect critical habitat for endangered Roseate Terns, this Zone I designation will be
in effect from the time Roseate Terns arrive to nest until they leave (May 1 to August 31). These
dates may change if ongoing monitoring indicates that the arrival/departure dates for terns is
changing. Outside of the nesting period, this area will be Zone II.
• Freshwater Ponds:
There are several freshwater ponds on Sable Island that are essential to maintaining the island’s
current biodiversity. The number and total surface area of freshwater ponds have decreased
through time. All freshwater pond ecosystems including a 5 metre buffer around the pond edge
are designated Zone I areas.
Zone II – Wilderness
This category contains extensive areas that are good representations of a natural region and are
conserved in a wilderness state. The perpetuation of ecosystems with minimal human interference is the
key consideration. Zone II areas offer opportunities for visitors to experience firsthand the park’sSable Island National Park Reserve 11
Draft Management Plan
ecosystems and require few, if any, services and facilities. In much of Zone II (70 % of park reserve area),
visitors have the opportunity to experience remoteness and solitude. Motorized access is not permitted
except strictly controlled motorized access for research, park operations and outreach and education
activities relating to the park that are authorized by Parks Canada and are consistent with Parks Canada
policy and regulations.
In keeping with Parks Canada policy, the vast majority of Sable Island National Park Reserve is Zone II.
This includes all vegetated areas of the island, embryo dunes on South beach, non-vegetated areas within
the interior of the island (except zone III crossings), the Western sand spit bounded by Autumn’s
Crossing, and the Eastern sand spit bounded by East Crossing.
Zone III – Natural Environment
Areas that are managed as natural environments provide opportunities for visitors to experience a park’s
natural and cultural heritage values through outdoor recreation activities, requiring minimal services or
facilities of a rustic nature. While motorized access may be allowed, it will be carefully controlled.
Operational activities on Sable Island National Park Reserve require motorized vehicle use. This use will
be permitted in Zone III (29% of the park reserve areas) including: perimeter beach areas (defined as
areas between the scarp of vegetated dunes and ocean), the West Light fenced area which contains
infrastructure and requires regular access by motorized vehicle, and five designated island crossings.
Crossings are existing sand corridors that are approximately 5 metres wide and permit travel between
the North and South sides of the island.
Controlled access by fixed-wing aircraft, helicopter and boat will be permitted in Zone III.
Zone IV – Outdoor Recreation
Outdoor recreation areas are capable of accommodating a broad range of opportunities for
understanding, appreciation and enjoyment of the park’s heritage values and related essential services
and facilities (e.g., park operation and administrative functions) in ways that impact the ecological
integrity of the park to the smallest extent possible. Access by motorized vehicles is allowed.
Sable Island National Park Reserve’s operational and administrative functions are centralized within
Main Station, which has been assigned Zone IV (0.3% area of park reserve). This area includes
operational infrastructure contained within a fenced area, a helipad, and a surrounding heath buffer
area. The helipad is not in use from May to August to protect the tern colony in the immediate area.
Zone V – Park Services
Zone V is applied to major park operation and administrative functions. There are no Zone V areas
included on Sable Island National Park Reserve.
Environmentally Sensitive Sites / Culturally Sensitive Sites
Environmentally Sensitive Sites (ESS) and Culturally Sensitive Sites (CSS) are designated on the zoning
maps where an area is either too small to be designated as a discrete Zone I or because a site may be
variable from one year to the next. Recognition as an ESS or CSS ensures that the values for which a site
has been designated are protected and respected in any park management decisions or actions. There is
one recognized ESS and five recognized CSSs at Sable Island National Park Reserve:
Ecologically Sensitive Sites
ESS1 Tern Colony
There has been a tern colony at this location since at least 1998, although the colony increased
dramatically in size starting in 2006 and it is now one of two main colonies on the island (the other12 colony is in a Zone I special preservation area). In 2016, 1873 pairs of terns nested here, comprised of 95% common terns, and 5% Arctic terns. Culturally Sensitive Sites CSS1 Number 3 Lifesaving Station This area includes significant architectural and artifact evidence of the exposed and below grade buildings associated with the Number 3 lifesaving station. In addition, there are also substantial numbers of pre-lifesaving (1801) artifacts located that are clear evidence of an earlier 18th century occupation. CSS2 East Lighthouse and Life Saving Station In addition to the well-defined archaeological remains of the original East Light House, the area includes a minimum of 22 additional unique archaeological sites associated with remnant structural and artifact evidence of both the lighthouse and lifesaving operation at East Light. CSS3 Old Main Station While only six archaeological sites have been identified on the surface of “Old Main Station,” as the most intensively occupied area of Sable Island during the 19th and 20th centuries, there are substantial below grade archaeological resources associated with the numerous buildings and occupation zones. This is confirmed by a preliminary ground penetrating radar assessment in 2018. CSS4 Number 2 Lifesaving Station There are only four archaeological sites associated with the Number 2 Lifesaving station. Much of this site is currently below surface with occasional sand “blowouts” revealing structural evidence of the main house site. CSS5 Number 4 Lifesaving Station While there does not appear to be any remnant structural evidence of the Number 4 station, there is clear evidence of the site location based on the presence of artifacts located in a sand “blowout”.
Sable Island National Park Reserve 13
Draft Management Plan
Map 2 Zoning: West Light Sector14 Map 3: Zoning: Central Sector
Sable Island National Park Reserve 15
Draft Management Plan
Map 4: Zoning: Bald Dune Sector16 Map 5: Zoning: East Light Sector
Sable Island National Park Reserve 17
Draft Management Plan
8.0 Summary of Strategic Environmental Assessment
In accordance with The Cabinet Directive on the Environmental Assessment of Policy, Plan and Program
Proposals (2010), a strategic environmental assessment (SEA) is conducted on all national park
management plans. The purpose of a SEA is to incorporate environmental considerations into the
development of public policies, plans, and program proposals to support environmentally-sound decision
making. Individual projects undertaken to implement management statement objectives at the site will be
evaluated to determine if an impact assessment is required under the Canadian Environmental
Assessment Act 2012.
The scope of the strategic environmental assessment included the area within the boundary of Sable
Island National Park Reserve and considered influences from potential external local and regional
stressors outside of the park, climate change, changes in visitation and proposals in the management plan.
The time frame considered in the assessment was ten years from the date of the plan, at which time the
plan will be reviewed. Valued components evaluated in the SEA include: freshwater, horses, species at
risk, groundwater, seabirds, grey seals, and coastal vegetation.
Sable Island is home to a unique herd of wild horses and a number of species at risk, including Roseate
Tern, Ipswich Sparrow and Sable Island Sweat Bee. Freshwater ponds are vital to maintaining these and
other flora and fauna species on the island. Over the last century, dune-breaching and subsequent salt
water intrusion have impacted freshwater water quality and pond surface area. The Island remains very
sensitive to climate change due to its relief, sand composition, wave exposure and projected sea level rise.
The ecological integrity monitoring program is still in its infancy and further work needs to be undertaken
to address information gaps.
To address these challenges, the management plan identifies objectives to understand environmental
change in the park and adapt management practices to the evolving environment. This includes climate
change research and planning, research and monitoring of ecological integrity measures to address
knowledge gaps, recovery actions implemented for species at risk, reduction of the infrastructure
footprint, waste management, management of visitation levels, and implementation of best management
practices to reduce potential visitor impact. The plan also designates freshwater ponds, including a 5
meter buffer around the pond edge, as Zone 1-Special Preservation. The draft SEA identifies further
mitigation as required.
Engagement with the public, Indigenous groups and stakeholders will be conducted on the draft
management plan. Feedback will be considered and incorporated into the SEA and management plan as
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